2. Pilot Project Summary
2.1 Project Overview
In March 2001, the I-95 Corridor Coalition approved funding for an ETC/E-Screening Interoperability Pilot Project. The primary goal of the Pilot Project was to establish regional interoperability between ETC and E-screening, with the long-term goal of providing a model for national interoperability of DSRC applications. The project combined testing a single dual-mode DSRC transponder (the Mark IV Fusion Transponder) for both ETC and E-screening, and developing administrative and organizational structures that would support interoperability beyond the Pilot Project. The intent of the Pilot Project was to coordinate the Northeast's interoperable ETC program, E-ZPass, with the CVISN E-screening deployments planned by Maryland and Connecticut.
The joint lead agencies for the ETC/E-Screening Interoperability Pilot Project included the Maryland Department of Transportation (MDOT), the New York State Thruway Authority (NYSTA), the New Jersey Turnpike Authority (NJTA), and the Connecticut Department of Motor Vehicles (CT DMV). Within MDOT, the Maryland Transportation Authority (MdTA) provided operational support, with the Office of the Secretary providing initial program management and coordination support.
The FHWA, FMSCA, IAG, and ITSA all provided additional support to the Pilot Project. Maryland Motor Truck Association (MMTA), New York State Motor Truck Association (NYSMTA), and other motor carrier associations also assisted in this project. The NJTA and New Jersey Motor Truck Association (NJMTA) subsequently withdrew from the Pilot Project due to other pressing obligations.
The Pilot Project was designed as a series of incremental builds designed to incrementally establish functionality and address institutional and technical challenges that could potentially impact interoperability. One major objective of the Pilot Project was to address the lack of motor carrier participation, in particular, the lack of multiple, interoperable applications using a single transponder. Additional objectives focused on responding to the concern toll agencies had expressed about multiple transponder applications impacting reliable ETC operations.
2.1.1 Project Builds
Initially, the following five builds were developed for the project:
- Build 1: Pilot ETC/E-Screening Interoperability - In collaboration with the I-95 Corridor Coalition, the State of Maryland implemented a limited scale interoperability proof-of-concept project between ETC and E-screening applications at the Perryville Weigh Station on southbound I-95. The State procured 50 Mark IV Fusion transponders, which were assigned to Maryland-based interstate vehicles. The project plan was for these vehicles to be jointly enrolled in Maryland's E-Screening and the E-ZPass ETC Programs and prove the first use of a single dual-mode transponder.
- Build 2: Operational ETC/E-Screening Interoperability - Currently, the NYSTA has approximately 250,000 E-ZPass transponders being used by commercial vehicles for ETC. Through Build 2, approximately 10,000 of these E-ZPass commercial vehicles were recruited to further test ETC/E-screening interoperability. The initial project plan projected to be procured during the course of Build 2, but this did not happen. Build 2 also included the State of Connecticut's planned deployment of E-screening through the CVISN Pilot Project to test interoperability of E-screening between Maryland and Connecticut. The Build 2 objectives included:
- Demonstrate regional interoperability of ETC and E-screening using the Fusion transponder, and by doing so, act as a model for national ETC/E-screening interoperability.
- Establish participation in a regional E-screening program, and create a base of transponder-equipped vehicles for further E-screening deployments.
- Avoid the proliferation of transponders with single program applications that are not compatible with readers used in other programs that may potentially disrupt operations through radio frequency (RF) interference.
- Deploy the capability to issue and administer additional Fusion transponders enrolled in both programs, and demonstrate the enhanced marketability of E-screening as an interoperable program with ETC.
- Build 3: Enroll "Foreign" Transponders - This build was designed for implementation in conjunction with Build 2. The objective was to expand the program along the I-95 Corridor to allow non-IAG government agencies to issue the Mark IV Fusion transponders for enrollment in E-ZPass and to participate in E-screening as well. An additional 10,000 transponders were to be issued by Maryland under Build 3.
- Build 4: Motor Carrier Service Bureau - This build anticipated the establishment of Private Motor Carrier Service Bureaus to perform transponder administration functions (e.g., accounting, charges to carriers and reconciliation with toll authorities) for carriers simultaneously participating in E-ZPass and E-screening programs.
- Build 5: Multi-Application Interoperability - This build anticipated North American multi-application interoperability to enable program expansion throughout North America.
To encourage motor carrier participation in Builds 2 and 3, the proposed plan offered Mark IV Fusion transponders at the same cost as the E-ZPass flat pack transponders, approximately $22 per transponder, through a project-funded subsidy of approximately $16 per transponder.
After 2 years of implementation experience, in 2003, the Project Team conducted an assessment of Builds 2 and 3 to determine if changes in the national interoperability environment, as well as institutional and technical challenges encountered during the course of the project, warranted any change in project scope.
The most significant market change that occurred was the new policy established by the participating toll agencies to allow third parties to establish "super accounts" and take on transponder administrator functions. Under these "super accounts", third parties established "master" accounts with a toll agency to enable procurements of a large number of transponders. The third parties were then able to market these transponders to the motor carrier industry, and handle all associated administrative functions such as billing and payments. In addition, third party providers were also entitled to receive any available volume discount offered by a state.
Both the MMTA and NYSTA established "super accounts" to market transponders to their members. The NYSTA also established a program known as "Best Pass". The "Best Pass" program is designed to match a motor carrier with the combination of ETC and E-screening programs that best meets the particular carrier's needs. NYSMTA reviews a carrier's International Registration Plan (IRP) records to determine which programs best match where a carrier runs on a regular basis and then selects the appropriate programs that best match the carrier's area of operations.
"Best Pass" is currently available in the following ETC and E-screening programs and states as depicted in Table 2-1.23 The figure shows the states that are currently participating in each program.
| PrePass | NORPASS | E-ZPass |
|---|---|---|
| Alabama | Connecticut | Delaware |
| Arizona | Delaware | Illinois |
| Arkansas | Georgia | Maine |
| California | Idaho | Maryland |
| Colorado | Kentucky | Massachusetts |
| Florida | Maryland | New Jersey |
| Illinois | Minnesota | New York |
| Indiana | New York | Pennsylvnia |
| Iowa | North Carolina | Virginia |
| Kansas | South Dakota | West Virginia |
| Louisiana | Oregon | |
| Mississippi | Utah | |
| Missouri | Virginia | |
| Montana | Washington | |
| Nebraska | British Columbia, Canada | |
| Nevada | ||
| New Mexico | ||
| Ohio | ||
| Oklahoma | ||
| Tennessee | ||
| Virginia | ||
| West Virginia | ||
| Wisconsin | ||
| Wyoming |
A second significant change in the market involved an agreement between the PrePass Program and the NYSTA to allow interoperability between PrePass-enrolled motor carriers and E-ZPass. The program, known as PrePass Plus,24 enabled motor carriers to use transponders obtained for the PrePass electronic pre-clearance program for E-ZPass. Affiliated Computer Services, Inc. (ACS), the vendor for E-ZPass, is also the venture capitalist supporting the HELP, Inc., public-private partnership that supports PrePass. This cooperative working relationship enabled ACS to modify the PrePass and E-ZPass systems so that each system would be able to identify a CMV transponder the other ACS program, thus providing in-program interoperability.
As a result of these changes in the structure of the market, the Project Team determined that several mid-course adjustments in project scope were warranted:
- Widespread distribution of transponders with a subsidy provided by the project, as initially planned under Build 2, was not required as a component of the interoperability Pilot Project. Since the project was first initiated, the Mark IV Fusion transponder has become readily available on the market. The Project Team determined that the issue of converting to the Fusion transponder would be a business decision on the part of motor carriers. In addition, the Project Team also concluded that the cost differential between the E-ZPass flat pack transponder and the Fusion transponder was no longer an issue with respect to promoting interoperability, and that motor carriers would choose to enroll in ETC and E-screening systems if the enrollment process was available and not complicated. As mentioned previously, the Project Team concluded that the proposed subsidy of the cost difference between the two tags was no longer needed as part of the Pilot Project.
- Build 3 would best promote the project's objectives by making the enrollment process easier for motor carriers and sharing enrollment information with other jurisdictions as designated by the motor carrier. The scope of Build 3 was redefined to be two concurrent efforts:
- Make improvements to and expand Maryland's motor carrier Web portal to make the screening enrollment process easier for motor carriers by accepting and sharing enrollment information with other jurisdictions. This joint acceptance and information sharing promotes more efficient screening enrollment possible in the multiple jurisdictions designated by the motor carrier. As part of this effort, the new and expanded service would be promoted through marketing efforts targeting multiple jurisdictions throughout the I-95 corridor.
- Conduct a feasibility study to determine if it would be practical to interface ETC and E-screening systems. If this did prove feasible, the second part of this effort was to move forward in developing and deploying the interfaces.
The NYSTA also made a business decision to withdraw from transponder distribution activities after the 2,000 units procured were distribute and to rely on market forces, in particular the super accounts, to encourage industry participation in the program.
2.1.2 Project Deployment
The initial project activities included installing electronic screening infrastructure at the MdTA's I-95 southbound weigh station located at Perryville, Maryland, and expanding the E-ZPass system to include motor carriers at all MdTA toll facilities including the facility located on I-95 northbound opposite the weigh station. Johns Hopkins University's Applied Physics Laboratory was selected to oversee the electronic screening system installation, which included:- Installing a mainline WIM on I-95 approximately one-half mile before the weigh station. The WIM system selected was the Piezzo Strip system.
- Installing electronic readers at the WIM location and at the weigh station to enable the identification of trucks approaching the weigh station and the verification that a driver had responded appropriately to a "green light/red light" signal as the truck in question passed by the weigh station.
- Developing electronic screening software by the Johns Hopkins University Applied Physics Laboratory.
- Programming and installing two computers at the Perryville Weigh Station - the ROC that controlled the electronic screening system components and that operated the E-screening software.
The MdTA authorized its E-ZPass vendor ACS to both enroll motor carriers in the E-ZPass program and to install E-ZPass readers and cameras (used to identify violators who do not pay tolls either through the E-ZPass program or manually) at the "truck only" lanes at the I-95 northbound Perryville, Maryland toll plaza. While this activity was not done as part of the Pilot Project, the equipment deployment and the E-ZPass implementation for CMV did support project objectives.
At the time the project was implemented, MdTA policy stated that all trucks are required to pass through truck-only lanes at the toll plaza, which separates passenger and commercial vehicle traffic. In addition, in 2004 signage was installed along southbound I-95 advising motor carriers of the E-screening capability at the Perryville Weigh Station. Concurrent with the Maryland installations, the State of Connecticut began installing E-screening equipment at the Union Weigh Station located along the Massachusetts - Connecticut border on I-84.
While the physical infrastructure necessary to support ETC and electronic screening was being installed, the project agencies established the following procedures to enable motor carriers to enroll in both the ETC and E-screening programs:
- Motor carriers enrolling in ETC programs in New York and Maryland were offered the option of obtaining either an E-ZPass flat pack transponder or a Mark IV Fusion transponder capable of interoperability between the ETC and E-screening programs. The Mark IV Fusion transponders offered for the dual-mode application contained two separate unique identifiers built in by the manufacturer - one each for the ETC and E-screening applications.
- Motor carriers interested in the E-Screening Program then had to go through a separate enrollment process. Motor carriers contacted MDOT. Motor carriers then submit their E-screening enrollment information through the MDOT Motor Carrier Web Portal.25 Connecticut joined the North American Preclearance and Safety System (NORPASS) electronic screening program. NORPASS is a partnership of State agencies and trucking industry representatives who are committed to promoting safe and efficient trucking throughout North America. Connecticut utilizes NORPASS to enroll motor carriers for E-screening. Once the electronic application is received, MDOT personnel enter this information into the E-screening system. This latter function is performed manually, although a component of the revised Build 3 was to develop an interface between the Web portal enrollment and the E-screening software to fully automate all enrollment activities.
The key to the success of the interoperability Pilot Project is the manufacturer installation of these two unique identifiers. The AVI readers currently used for ETC and E-screening are not compatible - the readers used for each system are unique for that system. Both systems, however, are able to read the Mark IV Fusion transponder; thus, assigning two unique identifier numbers to a motor carrier for use on a single transponder enables the interoperability between the two systems.
The Coalition developed a brochure describing the Pilot Project, which was distributed by MdTA and NYSTA to all commercial vehicle E-ZPass accounts. In addition, the MMTA, the NYSTA, and the Connecticut Trucking Association (CTA) provided information about the Pilot Project to all their members.
The initial deployment of transponders is still ongoing. A total of 12,000 transponders were initially procured: 2,000 by NYSTA and 10,000 by MDOT, respectively.
2.1.3 Implementation Experience
To date, implementation results have been mixed. One success is the resulting development of the Maryland Motor Carrier Portal, a Web-based portal enabling motor carriers to submit an application to join the Maryland Electronic Screening Program electronically.26 Motor carriers have successfully used this portal to enroll in the program.
A copy of the Motor Carrier Portal E-Screening Enrollment instruction page is shown in Figure 2-1.27 Figure 2-2 shows the actual E-Screening Application form, which includes information motor carriers are required to provide, such as the business name and address, USDOT number, transponder number and type, and vehicle information.28 Once this information is received, MDOT updates the E-screening system to include these carriers. The data input needed for the system update is currently performed manually, but an interface that will connect the electronic application directly with the Maryland Commercial Vehicle Information Exchange Window (CVIEW) system and enable real-time processing is under development.
Figure 2-1. Maryland Motor Carrier Portal.14
Figure 2-2. Maryland E-Screening Application Form.14
The E-screening program tested by Maryland in the Pilot Project incorporated two significant elements. First, the Maryland Electronic Screening Program did not require that a motor carrier be pre-qualified in order to enroll in the program. Any motor carrier submitting an application, providing that the motor carrier was a legitimate operation meeting State requirements, was eligible to enroll in the program. If the motor carrier had an outstanding issue or issues that would result in the carrier not meeting the E-screening bypass criteria, the State, to the extent feasible, advised the motor carrier of this so that the motor carrier could address the problem in question. However, motor carriers were not required to meet specific criteria in order to receive a transponder, participate in the program, and be eligible for a weigh station bypass, provided the motor carriers satisfied bypass criteria.
The Maryland Electronic Screening Program was the first in the United States to test the CVISN concept of E-screening, which is electronic screening on a real-time basis. As snapshot information on motor carriers participating in the Maryland Electronic Screening Program was updated, it was downloaded to the ROC at the Perryville facility using the Maryland CVIEW. Snapshot information was obtained from Safety and Fitness Electronic Records (SAFER) system and from Maryland legacy systems utilizing interfaces developed as part of Maryland's CVISN program. Bypass/no bypass messages were issued to motor carriers based on snapshot information. No list of pre-approved motor carriers was established. Though the weigh station personnel maintained the option to signal drivers for a pull-in, the bypass decision was usually based on the most recent information available contained in the snapshot.
The second key element of the Maryland Electronic Screening Program was in establishing an interoperability working relationship with NORPASS partners to work together to deploy mainline screening systems at weigh stations. This partnership allows safe and legal trucks to proceed unimpeded while enforcement resources are focused on high-risk motor carriers. NORPASS members were previously listed in Figure 2-1.
Through the interoperability working relationship, Maryland and NORPASS exchange data files containing motor carrier enrollment information, transponder identifiers, and other relevant information on each program's members. Members are then able to participate in both programs and receive E-screening benefits. No fee is required to register in either program. Motor carriers participating in the Maryland program were also able to enroll in the ACS PrePass program and use the Mark IV Fusion transponder obtained from the Maryland program. The Maryland program, however, did not read PrePass transponders or issue and bypass/no-bypass messages to motor carriers enrolled in PrePass but not in Maryland and/or NORPASS. In addition, carriers enrolled in PrePass are not able to use PrePass transponders for other programs and must enroll in those programs separately.
As of June 2004, a total of 281 companies had enrolled in the Maryland Electronic Screening Program and a total of 2,181 transponders had been distributed.
As of December 2004, the NYSMTA Super Account had enrolled 360 companies in New York with a total of 30,000 transponders distributed (Mark IV Fusion and standard E-ZPass flat packs). Similar numbers for Pennsylvania and Maryland were 150 companies/10,000 transponders and 110 companies/2,500 transponders, respectively.
23Information was derived from the NYSMTA "Best Pass" marketing brochure.
24PrePass Update online newsletter, published July 2002. Accessed from: http://www.prepass.com/monthly_updates/jul2002.htm.
25Maryland Motor Carrier Portal, accessed from: http://170.93.140.16/mdot/mmcp/escreening/index.html.
26Maryland Motor Carrier Portal, accessed from: http://170.93.140.16/mdot/mmcp/escreening/index.html.
27Ibid.
28Ibid.